JFTDWS
+++ Out of Cheese Error +++
Plenty of people who have sat PC and BHS exams go on to get injured by horses. No exam can make someone capable of handling a horse that's going rogue - most of staying safe while handling horses is about reading the horse's subtle behaviour and responding appropriately to that. It isn't something you could reasonably teach in the manner you're suggesting.
I'm not sure where you are that there's a shortage of instructors with qualifications. In the UK, there are huge numbers of BHS AIs (or their newer counterparts) and UKCC qualified coaches. They're not necessarily better with horses than their unqualified counterparts - the variation is enormous in all spheres.
I'm not sure where you are that there's a shortage of instructors with qualifications. In the UK, there are huge numbers of BHS AIs (or their newer counterparts) and UKCC qualified coaches. They're not necessarily better with horses than their unqualified counterparts - the variation is enormous in all spheres.